Political Economy of Political Economy of Decentralised Planning in India Decentralised Planning in India with Special Reference to the with Special Reference to the

Experience of KeralaExperience of KeralaByBy

Jos ChathuklulamJos Chathuklulam

Centre for Rural Management (CRM)Centre for Rural Management (CRM)

Kerala, IndiaKerala, India

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   John S MoolakkattuJohn S Moolakkattu

IIT Madras, IndiaIIT Madras, India 11

Why Decentralised Planning?Why Decentralised Planning?

    Sheer size of the countrySheer size of the country  Varying needs of the peopleVarying needs of the people  Regional disparitiesRegional disparities  Differential availability of local Differential availability of local

resourcesresources  Centrally conceived departmental Centrally conceived departmental

plans often work at cross purposesplans often work at cross purposesLocal stake and ownership Local stake and ownership

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Efforts for decentralised planning (DP) had Efforts for decentralised planning (DP) had started right from the early days of planning started right from the early days of planning in Indiain India  Advances in DP took place along with Advances in DP took place along with evolution and growth of Local evolution and growth of Local Governments(PRIs) in IndiaGovernments(PRIs) in IndiaLocal Governments (PRIs ) were formed in Local Governments (PRIs ) were formed in the late 50s.the late 50s.  Early attempts at DP were primarily Early attempts at DP were primarily technical/bureaucratic in charactertechnical/bureaucratic in characterThey petered out due to lack of Autonomy, They petered out due to lack of Autonomy, Resources and Political / Democratic Resources and Political / Democratic Mandate. Mandate.

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60 s & 70s witnessed lack of progress in 60 s & 70s witnessed lack of progress in DP – a phenomenon that is attributed to DP – a phenomenon that is attributed to the overall decline in PRIs everywhere in the overall decline in PRIs everywhere in India. India.

Attempts to Strengthen the PRIs and Attempts to Strengthen the PRIs and introduce DP were taken by the Non- introduce DP were taken by the Non- Congress governments (West Bangal, Congress governments (West Bangal, Andhra Pradesh and Karnataka) Andhra Pradesh and Karnataka)

  During this period a paradigm shift is During this period a paradigm shift is observed (‘Political Component’ is grafted observed (‘Political Component’ is grafted on to DP) on to DP)

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In early 80s, there was an expansion of In early 80s, there was an expansion of centrally sponsored rural development centrally sponsored rural development programmes.programmes.

  It was found that bureaucratic channel of It was found that bureaucratic channel of implementing them was missing the implementing them was missing the targets, leading to leakages and waste. targets, leading to leakages and waste.

Fresh initiative to strengthen PRIs and DP Fresh initiative to strengthen PRIs and DP at the sub state levels from the mid-at the sub state levels from the mid-eighties.eighties.

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It was in this context the 73 & 74 It was in this context the 73 & 74 amendments to the Constitution amendments to the Constitution were conceived. were conceived.

They provided a robust basis for DP They provided a robust basis for DP because the goal was to create Local because the goal was to create Local Governments that can function as Governments that can function as Institutions of Self Government and Institutions of Self Government and perform planning functions as well.perform planning functions as well.

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The creation of District Planning The creation of District Planning Committees (DPCs) to consolidate plan Committees (DPCs) to consolidate plan prepared at different levels and to prepared at different levels and to prepare a District Plan - a significant prepare a District Plan - a significant advance in terms of institutionalization advance in terms of institutionalization of DP. of DP.

  Most of the States have constituted Most of the States have constituted DPCs but they are still struggling to DPCs but they are still struggling to perform their assigned constitutional perform their assigned constitutional role.role.

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Silver Linings ?Silver Linings ?The introduction of Flagship Programmes The introduction of Flagship Programmes of the Government of India in recent years of the Government of India in recent years and the progressive allocation of funds for and the progressive allocation of funds for them have led to a “ them have led to a “ System of System of Programme - Specific District Level Programme - Specific District Level Planning”.Planning”.

Though such plans are like sectoral Though such plans are like sectoral district plans they are projected as district plans they are projected as Building Blocks for future District Plans.Building Blocks for future District Plans.

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Availability of Information and Availability of Information and Communication Technology (ICT) Communication Technology (ICT) which could be used for planning. A which could be used for planning. A number of useful software packages number of useful software packages such as the user friendly ‘Plan Plus’ such as the user friendly ‘Plan Plus’ have been made available for DPhave been made available for DP

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Two Misplaced PerceptionsTwo Misplaced PerceptionsThere is a misplaced presumption that the 73 There is a misplaced presumption that the 73 & 74 Amendments are sound enough and & 74 Amendments are sound enough and District planning can take place within this District planning can take place within this framework. While it is partly true with respect framework. While it is partly true with respect to the Gram and Block Panchayats, the same to the Gram and Block Panchayats, the same is not true when it comes to District Planning.is not true when it comes to District Planning.

There is another misplaced presumption that There is another misplaced presumption that DP can take place within the bureaucratic & DP can take place within the bureaucratic & technocratic framework . The political technocratic framework . The political Economy Perspective is missing in the Economy Perspective is missing in the Decentralized Planning exercise. Decentralized Planning exercise.

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Major IssuesMajor Issues

Knowledge gapKnowledge gapIs planning a mere technical exercise ?Is planning a mere technical exercise ?Political inputs need to be factored in to Political inputs need to be factored in to

the planning process.the planning process.Planning should not be prerogative of the Planning should not be prerogative of the

elected representatives alone.elected representatives alone.Without putting in place a District Without putting in place a District

Government the process of decentralized Government the process of decentralized planning cannot make much progress. planning cannot make much progress.

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The question of political will The question of political will

Political and bureaucratic Political and bureaucratic resistance from state level resistance from state level functionaries to sharing power functionaries to sharing power and resources with the local leveland resources with the local level

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Experiences of KeralaExperiences of Kerala

People’s Plan Campaign (PPC)People’s Plan Campaign (PPC)

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BackgroundBackgroundKerala is in some ways a late entrant in the Kerala is in some ways a late entrant in the field of decentralization field of decentralization

Except for a very brief experiment with Except for a very brief experiment with District Council in the early 1990s, it always District Council in the early 1990s, it always had only a Gram (Village) Panchayat had only a Gram (Village) Panchayat system. system.

Village Panchayats in Kerala historically the Village Panchayats in Kerala historically the most endowed in the countrymost endowed in the country

Unsustainability of the ‘Kerala Development Unsustainability of the ‘Kerala Development Model’ and the need to salvage it was widely Model’ and the need to salvage it was widely recognised by the mid-ninetiesrecognised by the mid-nineties

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Background (contd…)Background (contd…)SStagnation in production tagnation in production

Discussions/ seminars etc under the aegis of the left Discussions/ seminars etc under the aegis of the left on Kerala’s sustainable developmenton Kerala’s sustainable development

Political consensus within the top echelons of the Political consensus within the top echelons of the left for decentralizationleft for decentralization

The encouraging experiments in participatory The encouraging experiments in participatory development in some Panchayatsdevelopment in some Panchayats

Availability of pro-left activist/epistemic group of Availability of pro-left activist/epistemic group of thousands of KSSP workers with a record of thousands of KSSP workers with a record of voluntary workvoluntary work

The context provided by the 9The context provided by the 9 thth Plan Plan

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Other factorsOther factors

Devolution of 35% to 40 % development Devolution of 35% to 40 % development funds to local bodies and then capacitate funds to local bodies and then capacitate them not the other waythem not the other way

Investing the Gram Sabha with the task of Investing the Gram Sabha with the task of need identification, plan approval and plan need identification, plan approval and plan implementation including beneficiary implementation including beneficiary selection- first time in Indiaselection- first time in India

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Preparatory workPreparatory workPolitical consensus formation by bringing in the Political consensus formation by bringing in the oppositionopposition

Elaborate system of trainingElaborate system of training

Training of trainersTraining of trainers

Preparation of training materialsPreparation of training materials

Training content – focused on the organisational Training content – focused on the organisational aspects of the planning process as well as thrust aspects of the planning process as well as thrust areas such as productive sector, gender, areas such as productive sector, gender, marginalized communities, equity, watershed, marginalized communities, equity, watershed, integration, and so on. integration, and so on.

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Stages of planningStages of planningGram Sabha discussions and reportingGram Sabha discussions and reporting

Consolidation of the Gram Sabha reports sector wise Consolidation of the Gram Sabha reports sector wise into a Panchayat level reportinto a Panchayat level report

Development seminar to discuss the report and set Development seminar to discuss the report and set prioritiespriorities

Formation of task forces for each of the sectoral areas Formation of task forces for each of the sectoral areas

Preparation of a shelf of projects reflective of the Preparation of a shelf of projects reflective of the priorities mentioned in the seminar by task forcespriorities mentioned in the seminar by task forces

Vetting of the projects by the expert body (TAGs)Vetting of the projects by the expert body (TAGs)

Granting of Administrative sanction by the PanchayatGranting of Administrative sanction by the Panchayat

Technical sanction Technical sanction

Submission to the DPC for approvalSubmission to the DPC for approval

Project implementation – back to Gram Sabha Project implementation – back to Gram Sabha 1818

PPC KDP PPCPPC KDP PPCunder different political regimesunder different political regimesIn Kerala decentralization was expected to In Kerala decentralization was expected to deepen through the process of deepen through the process of decentralised planningdecentralised planning

99thth Plan as development of a working Plan as development of a working methodology of planning(LDF)methodology of planning(LDF)

1010thth plan as institutionalisation of the plan as institutionalisation of the procedures (UDF)procedures (UDF)

1111thth plan as the institutionalisation of plan as the institutionalisation of Decentralisation (LDF)Decentralisation (LDF)

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Results Results Mobilised nearly 10 percent of the Mobilised nearly 10 percent of the population population

Mobilised nearly 1 lakh trainersMobilised nearly 1 lakh trainers

Planning process demystified and made Planning process demystified and made understandable by the people.understandable by the people.

Institutionalisation of the planning cycle- Institutionalisation of the planning cycle- Grants to local bodies on the basis of Grants to local bodies on the basis of objective criteria - incorporated in the state objective criteria - incorporated in the state budget and let known well in advance. budget and let known well in advance.

Some visible impacts on marginalized Some visible impacts on marginalized communities.communities. 2020

ChallengesChallengesNo District Planning- minimalist and amteurish No District Planning- minimalist and amteurish functioning of the DPCfunctioning of the DPC

Beneficiary committees faded out after 2 yearsBeneficiary committees faded out after 2 years

Plan process and budget not integratedPlan process and budget not integrated

District level and state-level integration of local plans District level and state-level integration of local plans does not take place. does not take place.

Annual plans do not get integrated into the five year Annual plans do not get integrated into the five year planplan

Routinisation of the participatory process – no Routinisation of the participatory process – no citizen participation, but only engineered beneficiary citizen participation, but only engineered beneficiary participationparticipation

Declining participate level by engaged sectionsDeclining participate level by engaged sections

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ChallengesChallengesElaborate guidelinessectoral ceilings Elaborate guidelinessectoral ceilings constrain the level of freedom/discretion of constrain the level of freedom/discretion of the Panchayats the Panchayats

The annual nature of the planning process The annual nature of the planning process makes it time-bound and very little makes it time-bound and very little participatory input can be marshalled in participatory input can be marshalled in such a short timesuch a short time

Decisions taken at the Panchayat level Decisions taken at the Panchayat level always made to prevail – not revised or always made to prevail – not revised or annulled by the Gram Sabha annulled by the Gram Sabha

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ChallengesChallenges

No major impact on productive sector ?No major impact on productive sector ?

The discontinuity between the optimal The discontinuity between the optimal planning principles that envisage larger planning principles that envisage larger spatial levels to get the spin offs from spatial levels to get the spin offs from economies of scale and political economies of scale and political accountability to the smaller spatial level of accountability to the smaller spatial level of the electoral ward – leading to scattering the electoral ward – leading to scattering of funds. Answer: Prop. Rep with of funds. Answer: Prop. Rep with multimember constituencies? multimember constituencies?

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